This research addressed the issue of assessing the influence and impact of one external SDI policy (EU) on one internal SDI policy (Macedonia) in order to better understand the cross border information infrastructure. The aim was to identify the link of the INSPIRE Directive in relation to development and implementation of NSDI in this N-EUMS and understand why, how and to which extent does INSPIRE influence the development and implementation on the N-EUMS NSDI taken through the perspective of the NMCAs. In order to understand this, the impact/influence and extent of the INSPIRE Directive in relation to development and implementation of the Macedonian NSDI through the perspective of the NMCA i.e. AREC was assessed. This is accomplished by answering the defined sub-objectives i.e. related research questions.
Sub objective 1
Research question 1: Considering the policy cycle, the consulted literature revealed that the policy impact can
be understood as the change occurring in the policy cycle while policy influence and associated advocacy can be understood as the action of influencing, by someone or something, on the policy decision making. Based on this perception, the impact of one external policy on one internal policy can be viewed as a marked effect of influence on the internal policy. This clearly relates to the impact/influence of EU policy on domestic policies where certain driving forces are considered. They are explained through the definition of policy convergence, considering several theories which lead to SDI development. In relation to this research, the increase of similarities of the Macedonian NSDI policy compared to the INSPIRE Directive may be qualified as policy convergence.
The impact assessment (IA) is considered trough a specific policy field i.e. SDI. Clearly, the impact is assessed based on the existence and similarity/compliance in relation to the external policy, while the influence is based on the factors from where and how they are originated. In order to assess the impact/influence between the two policies certain aggregation form of policy measures are defined in form of assessment steps. The aim of these steps was to assess the impact/influence of one policy on other concerning not just the policy itself but also the existing actions reflected by that policy. These steps include definition of framework of SDI aspects and indicators based on which the analysis of similarity/conformity is made. This analysis complements the results from the qualitative analysis of the collected data, which is used to define the perceptions i.e. opinions of the interviewees and the considered grey literature, to detect the patterns and relation between the defined codes and categories by formulating certain findings. This completes the definition of assessment steps needed for assessing the impact/influence and extent of compliance related to the defined research questions in the three sub- objectives.
Research question 2: The defined framework of aspects and indicators comprises of 5 SDI components, 13
aspects - several per component and approximately 3-4 indicators per aspect, defined based on consulted scientific literature and existing SDI assessment evaluation frameworks that are used to assess the implementation of the INSPIRE Directive in the EUMS. The indicators and the measurable variables were defined to fit the need of this research in order to measure the existence, convergence and type of impact of the external on the internal policy. They were used to detect if the policy proposal has led to a legislation which is adopted or indicators which are based on perception i.e. opinion related to the qualitative data analysis. The aim of this framework was first to re-present the considered policies in a unified way so they can be used for defining the elements and relations between the policies and secondly to perform the assessment of the impact/influence.
Sub objective 2
Research question 3: Considering the fact that the defined framework is based on the existing INSPIRE
assessment evaluation frameworks a full coverage of identified elements from the INSPIRE Directive in relation to the defined SDI aspects (technical, legal and organizational) is detected, excluding the PPP.
Research question 4: The elements of the Macedonian NSDI strategy/policy in relation to the INSPIRE
Directive are perceived through the policy aspects that are directly related (direct impact) and aspects that are indirectly related (indirect impact). The level of similarity/conformity is different for different aspects due to the fact that the influence is perceived from the driving forces of policy convergence originated from different factors i.e. reasons of influences. In general, the elements where direct impact is identified are based on the external factors of influences, where the elements of high level conformity are related to technical aspects such as the Network Services, Interoperability and Metadata aspects while the middle level of conformity is related to organizational and legal aspects as the Organization – Monitoring, Data Sharing,
Ownership/Legal protection of GI intellectual property rights, Limitations and Restrictions Access to Spatial Data and Services and Data Sets aspects. On the other hand the elements where is identified indirect impact are based
on the subjects to the needs and interests in the Macedonian NSDI context where the elements of high level conformity are related to the Stakeholders/Participants aspects while the middle level of conformity is related to Organization – Coordination and Data Licensing aspects. The remaining aspects as PPP and
Organization - Quality Assurance that are defined with low or no level of conformity, have no related
elements between the considered policies.
Research question 5: The possible reasons of compliance with the INSPIRE Directive are identified based on
the considered driving forces of policy convergence which are perceived trough the reasons of influence. The reasons reflect the political will of the Macedonian Government to be compatible with EU and the EU policy influence which insists on regionalization. They are related to the influence that is originated from domestic factors such as the non-functionality and non-existence of internal standards and mechanisms as well as the influence coming from the NMCA itself. The reasons related to cross-national policy convergence caused by trans-national communication and information exchange such as the EU funds, involvement of external actors and organizations, ideas and knowledge exchange, cross-border cooperation and SDI related projects are reasons emerging from external factors. The international harmonization related to requirement for policies adaptation in line with international laws is perceived trough reasons coming from internal factors such as the reforms and modernization in the NMCA, harmonization of legislation, standards and procedures compatible to EU and influences concerning the recognition of the need of INSPIRE values. This theory even if it is not directly concerning the N-EUMS still has a huge influence in relation to compliance with the INSPIRE Directive.
INSPIRE IN CONTEXT OF NON-EU-MEMBER STATES NSDI: CASE STUDY OF MACEDONIA
Sub objective 3
Research question 6: The NMCA as in the case for Macedonia so in the region represents a relevant example
of organization which reflects the development and implementation of the NSDIs in the N-EUMS in regard to the INSPIRE Directive. The NMCA is seen as the main actor and developer of the NSDI and is included in every legal, technical and organizational aspect of the NSDIs including the policy arrangements i.e. decisions making. The NMCA also represents the link for cross-border cooperation on regional level where concerning the regional SDI projects, is the main beneficiary. The NMCA as one of the NSDI stakeholders is clearly influenced by INSPIRE. The influence on the decisions and practices which are reflected as part of the NMCA responsibilities are perceived through the actions taken as part of the NSDI development and implementation process. The influences on the affected action are coming from internal factors such as defining better standards and data sharing arrangements and external factors as support from EU and the WB and participation in the EU/World organizations. However the influence is also coming from the NMCA as an organization, regardless of whether it is originated from the NMCA itself or whether it has been influenced, is directly transferred on the practices of the other NSDI stakeholders on national level and as an experience and example on regional level.
Research question 7: The scale/scope of actions affected by the INSPIRE Directive in the Macedonian
NMCA through which the influence is perceived, covers actions related to legislation transposition and definition of organizational structure, establishment of preconditions for technical interoperability and standardization, future actions related to definition of bylaws and specification based on the INSPIRE IR as well as actions related to cross-border cooperation and the SDI related projects, which are generic for all the NMCAs in the region. The influence identified through this actions is related to action of adaptation of a number of European policies including the INSPIRE Directive as part of the process of Europeanisation as well as certain forms of influences such as the knowledge and ideas that are supplied and perceived, coming from international factor as very important actor for cross-national policy convergence perceived thought certain forms of persuasion such as advocacy. The actions are also identified as part of the internal coordination between the involved stakeholders where the interest of the participants as well the national interests are clearly incorporated as part of the NSDI policy.
Research question 8: The actions and decisions that are affected by the INSPIRE Directive define the
possible level of compliance to INSPIRE, where the compliance should be generally considered in three ways. The first two, covering the expectations that will have effect on organizational and national level, such as aim to answer the internal needs through defining INSPIRE compliant data standardization and arrangements for data sharing. The third way relates to expectations that will have effect on regional level, such as participation and deepening of the cross-border cooperation on regional level as part of the regional SDI projects and initiatives. The compliance can be achieved through actions that need to be considered by the NMCA, following a combination of several approaches where the concept is adapted based on the country circumstances and the existing capacities of the NMCA. These approaches refer to the NSDI Strategy and the Law on NSDI which should strive to be harmonized with the Directive, direct
application of INSPIRE including the IR and TS which will avoid adaptation and enable the use of the set
standards. The considered good examples and practices which will provide application of most appropriate approach by already considering the bottlenecks that the EUMS have encountered in the development and implementation process and continue the knowledge and ideas exchange from the region and EUMS as part of the cross-border cooperation which will define applicable standards and processes for harmonization that can fit on regional level, by taking in consideration the country’s similarities.
The possible extent to which the Macedonian NSDI can be enforced or complied with INSPIRE depends on several factors and certain facts that have influence on the extent of compliance on national level. These factors, that are originated from internal and external circumstances, the perceived bottlenecks and
the political decisions related to the EU aspiration, define the possible extent of the Macedonian NMCA and NSDI as partially in compliance to INSPIRE while considering that the current phase of NSDI development is at medium to high level and low level of implementation. Most of the considered aspects can be fully made in compliance, with exceptions for aspects that are clearly guided by the national interests and priorities and that may have impact on the business model of the organizations in general. The enforcement as part of the EU SDI at this stage is not reachable, yet the enforcement as part of some new regional SDI initiatives is not excluded. This perception is considered through the SDI cross-border cooperation and the SDI projects that are clearly accepted by all the N-EUMS in the region. The possible development of new regional SDI initiative that will be based on the same principles as the EU SDI can provide harmonization of standards and data needed to serve in environmental cases on regional and European level.
Main objective
The impact of the INSPIRE Directive onto the Macedonian NSDI is clearly identified through the perspective of the NMCA. The impact is perceived as part of the development and implementation process of the Macedonian NSDI through the policy itself but also through the existing actions reflected by that policy. This impact is identified as part of almost every considered institutional, legal, organisational and technical aspect. The impact has medium to high degree of influence onto the Macedonian NSDI policy context. This is related to the factors of influences that are perceived from external and internal reasons of influences i.e. compliance. The external factors of influence that are reflecting the EU involvement as well as the regional cooperation are considered stronger. The identified benefits and bottlenecks of complying to INSPIRE as well as the country’s context, needs and priorities at the current moment affects the possible extent of the Macedonian NMCA and NSDI to which can be enforced or complied to INSPIRE. The possible extent is in partial compliance, while the enforcement as part of the EU SDI at this stage is not reachable, yet the enforcement as part of some new regional SDI initiatives is not excluded.
In the end, the impact and influence of the INSPIRE Directive onto the Macedonian NSDI shows that even this EU Directive is not intended for N-EUMS clearly impacts the national SDI polices in the N- EUMS and has effect on the cross-border cooperation and project initiatives. This impact shows that even not being fully implemented and enforced, this Directive has positive effect on national and regional level, contributing to economic growth, sustainable development and above all on the environmental protection in the N-EUMS.